This is part two of three looking at last week’s so-called “historic” Agrarian Reform agreement between the FARC-EP and the Colombian government as part of Peace talks in Havana. Here, I take a look at Colombia’s history of failed agrarian reforms. This was originally published on May 30, 2013 over at Colombia Politics. If you want to know more, I strongly recommend that you check out this an analysis of land concentration in Colombia by Ana Maria Ibanez and Juan Carlos Munoz from the University of the Andes.
FARC agreement: Colombia´s history of violence and failed agrarian reform
Colombia´s government has signed an agreement with FARC guerrillas for agrarian or rural reform as part of the peace process currently underway in Havana.
On Tuesday I looked at the detail behind this accord, today I turn to history for the lessons we can learn from failed attempts at land reform in Colombia.
Colombia´s land; in the hands of the few, not the many
Like in many other Latin American countries, or post-colonial oligarchies/plutocracies, the wealth that comes from the land has been violently concentrated through different processes (genocide of indigenous peoples, colonialism, the encomienda system, agrarian reforms gone awry, free trade agreements/neoliberalism, and of course armed counter-agrarian reform/socio-political violence) for the last 500 years or so.
An astounding 52% of the land is owned by 1.15% of the population. The rural GINI coefficient (the standard measure for inequality among economists) is 0.85 (where a 1 means complete inequality/where one person owns everything). Only a fifth of the potentially productive land is actually being put to use.
Colombia is by no means a naturally unequal place. So, how did we get to to this point?
I don’t want to give a history lesson, but I think Sunday’s agreement between the FARC and the Santos Government is not just a deal within it itself, but represents a significant shift in a process of popular (often armed) mobilization for agrarian reform, and counter-mobilization and concentration by the elite.
This process refers not only to Colombia´s current violence (the 49 year long war and humanitarian disaster) but also a defining aspect of the entire way the nation has been organized since the encomienda.
The history of land concentration
Initially, land was organized around the idea of owning the land that one worked (or had workers on). Later, Spanish colonial government allowed private buyers to purchase government estates, and in 1821, the government allowed the direct transfer of public land into private hands.
Under the colonial regime, land belonging to the Church or to indigenous communities was nominally protected from colonization. However, these rights were abolished for indigenous reserves in 1810, and for the Church later on.
The legalization/formalization of uncultivated public land (baldios) was handled by a government who was (much like today’s Colombia) run exclusively by the elite, leading to the creation of even more large estates for the wealthy.
Land, as a way of avoiding taxes, fighting inflation, and building credit, made it an asset which was more valuable than just what it was able to produce, making it (like in most places) one of the most coveted assets by the elites, leaving little for the landless/popular classes.
The colonization of the Colombian territory saw small-scale peasant farmers pushed off their land, forced to move into more marginal areas which they would then make productive. The landed elites would then (often forcibly) push them off of this land, and in the process expanding their territory and further consolidating its ownership.
The peasants, now landless, would move deeper into the jungle/territory/mountains looking for land. This process to a certain extent still occurs today.
A peasants´ revolt?
By the 1920s, peasants organized themselves and went on the offensive. The elites in turn responded with more displacement. This social conflict resulted in the Agrarian Reform of 1936, which because of faulty implementation (and Colombia being a Plutocracy), resulted in the formalization of property again benefiting the elites.
The Landed Oligarchy, sick of having to deal with subversive peasants, also looked for ways of making the land productive by having more capital than labour, leading to the rise of cattle-ranching.
The class warfare was only exacerbated by La Violencia the civil war between the two political factions representing different sectors of the elite (the Liberals and the Conservatives). Forced displacement became an extremely common practice, and the standard method for resolving disputes over land given the general absence of the state in many rural or peripheral areas of the national territory.
In response to this crisis, in 1961 President Carlos Lleras Restrepo attempted a land reform through Law 135. Nevertheless, again, formalization and the granting of public land led to more concentration.
Only 1 per cent of the land was expropriated from the elite, and most of what was expropriated was poor or low-quality land. Ironically, as the government was promoting land reform, it was simultaneously giving large land owners the benefit of subsidies and tax incentives to increase production, increasing the value of their land, and making expropriation more difficult.
Rise of the narco-bourgeousie
From the 1970s to 1984, the rise of the “narco-bourgeousie” and their desire for land led to the decomposition of large estates, and the consolidation of medium-sized ones.
But while the armed counter-agrarian reform of the expansion of paramilitarism, as well as the booming cocaine industry which laundered much of its wealth in large estates reversed this trend, it also introduced drug trafficking into the historical trend of violent conflict between peasants and landed oligarchs.
In 1994, President Cesar Gaviria Trujillo tried another land reform with Law 160. Instead of focusing on formalization or expropriating land from the elite and redistributing it to the peasantry, however, it worked on the transfer of property through market mechanisms, where by the government would supposedly subsidize 70% of land bought by peasants from land owners.
However, as is evidenced by the case of the women of the Enchanted Valley, a group of displaced women who tried to purchase some land through this scheme and are now not only menaced by armed groups but also by debt collectors, the deal was only real in the halls of power in Bogota.
Paramilitarism resulted in the violent expropriation of 1.8 million hectares of land, or 2.5 times more land that had been re-distributed through the latest agrarian reform.
How different will the FARC, Santos Government reform be?
The Agrarian Reform thrashed out in Havana runs the risk of not being very different from previous failures. This is particularly true of how the process of “formalizing” land title (as the current agreement with the FARC seeks to do) usually is used by rural elites for their favour, and not for landless peasants.
But this reform forms part of a larger peace deal which is suppose to be transformative for Colombian society, and so the stakes are higher.
Have Paramilitaries entered where the state hasn´t bothered to go?
Sure the “New Colombian Countryside” deal sounds promising, but will it run the same risk as the 2011 Victim’s Law (Law 1488)?
In Cordoba, there is even a neo-paramilitary group that has deemed itself the “Anti-Restitution Army“.
This resurgence of armed agrarian counter-reform (or perhaps, a consolidation that already took place during the height of the AUC paramilitaries), shows that when it comes to land in “The Other Colombia”, not much has changed in 100 or even 200 years.
The government´s apparently noble policy of trying to help the most disenfranchised in Colombian society is fine, but both the fact that the State is co-opted by the elite, and that the state has no little to no legitimate presence beyond the military in “The Other Colombia”, means it has neither the mandate, authority, or capacity to carry out these reforms.
The State can’t re-distribute land in places it has never bothered to show up for.